Though the Corridor K debate was the impetus for the Opportunity Initiative Study, Opt-In wasn’t all about transportation. The results of the year-long regional visioning study has been enlightening, unifying and awash with great ideas to improve the area’s economic and cultural landscape, said Ryan Sherby, executive director of the Southwestern Commission Council of Governments.

There were high hopes for the $2 million Opportunity Initiative Study at the outset: to find a clear answer for whether a four-lane highway through the remote mountains of Graham County is worth the enormous price tag and environmental damage, whether it is in fact wanted by the majority of people, and whether it will indeed be a magic bullet to bring the rural county into the 21st century economy.

An ambitious yearlong exercise to create a collective economic vision for the mountains will decide whether a long-awaited $800 million highway through the rugged and remote far western end of the state is ever built.

Carrying a consulting fee of $1.3 million, the visioning process is supposed to quantify the emotional and ancedotal arguments about the controversial highway known as Corridor K — and ultimately determine whether it lives or dies.

Either way, the costly missing link of a four-lane highway through the remote southern mountains has hit a startling and potentially insurmountable roadblock. State and federal agencies are reluctant by some accounts — downright unwilling by other accounts — to issue essential environmental permits. Without them, the missing link can't go forward.

So for now, an 18-mile, $800 million highway through Graham County known as Corridor K is at an impasse.

Graham County is the final piece of a four-lane highway stitching together the seven, peak-pocked western counties before surging onward to Tennessee, blazing a pseudo-interstate from Asheville to Chattanooga.

The highway was envisioned nearly 50 years ago. Its purpose: to transform the far corner of Western North Carolina from an Appalachian backwater to economic prosperity.

"It was the same everywhere in Appalachia. It was just twisty two-laners, and it was a long trip to get anywhere," said Bill Gibson, the director of the Southwestern Commission, a governmental planning unit located in Bryson City for the seven western counties.

A lot has changed in the intervening decades, however. For starters, the region isn't exactly a backwater anymore. Also, environmental laws are much stronger, and road building is a lot more expensive.

But, Graham County is still clamoring for its promised piece of four-lane. Indeed, four-lane highways have been delivered to all the western counties except for Graham thanks to a special pot of federal road building money funneled to the region through the Appalachian Regional Commission since it was set up in the 1960s.

"I think to shortchange a small part of Western North Carolina of their opportunities is wrong," said Joel Setzer, head of the N.C. Department of Transportation for the western counties. "We got ours. We should care whether they get theirs."

Graham County's 18-mile missing link of the highway, pegged to cost from $700 to $900 million, is the most rugged, remote and environmentally challenging. The highway would bury streams and wetlands, cut into mountains and require a half-mile long tunnel.

Meanwhile, Graham County leaders blame their 18 percent unemployment rate and high poverty on the lack of a four-lane highway.

Graham County has come to view Corridor K as a silver bullet, the one thing separating it from the advances realized elsewhere in the mountains. If built, the county's unemployment and poverty would darn near solve themselves, leaders claim.

This easy fix to Graham's economic woes has proved anything but however.

"It has been studied to death," said Mike Edwards, the chairman of the Graham County commissioners. "It has been going on for four decades, and it has reached a point now where it is getting more and more difficult to justify building 18 miles of road."

So hard to justify, in fact, that the project has reached a stalemate. There's 10 different agencies, from the Environmental Protection Agency to the N.C. Wildlife Resources Commission, that can make or break the project by refusing to issue essential permits.

A few of these agencies are questioning whether the road is worth it. Given the price tag and environmental damage, will it truly bring the hoped for economic benefits?

"The regulatory agencies seem to be stuck," Gibson said. "They are saying why should we go through all this permitting if we aren't sure that the purpose and need really exists as was forecast? Will this realize economic development and improve lives? Is it true that this road is needed in the way that DOT now has it laid out?"

Misguided goal?

Economic development was once a driving force behind new highways. But, it is mostly touted as a side benefit these days rather than heralded as the sole purpose.

D.J. Gerken with the Southern Environmental Law Center in Asheville said it is rare to see road construction justified with economic development.

But, Setzer pointed out that was the rationale behind the four-lane highways in the seven western counties. From the bypass in Waynesville to the four-lane in Franklin, all were pursued for economic development under the banner of the Appalachian Regional Commission highway program.

"The purpose of the program was to end isolationism in the Appalachian region," Setzer said.

The question now, however, is whether that rationale is still relevant and will it work for Graham.

"It is not going to be the silver bullet they think it is," said Brent Martin, the Sylva-based Southern Appalachian director for The Wilderness Society.

State and federal agencies holding up the new highway have questioned whether there are other solutions to economic challenges in Graham County. They have also questioned whether the goal of ending Appalachian isolation when the highway was envisioned is still relevant today.

"It is doubling down with a half billion investment on an economic development plan from the 1960s rather than asking the question," Gerken said. "If Congressman Heath Shuler said 'I have half a billion to invest in Graham County economic development and just started taking ideas, I suspect you would get a lot better suggestions."

Building an $800 million highway for a county of 9,000 people is particularly problematic when there's no evidence to show it will accomplish economic development.

In a way, the state and federal agencies holding up the permits didn't have a choice, Gerken said.

"It is rare for a project to be so lacking in a clear purpose that the agencies are forced into this position," Gerken said. "The law states clearly that projects like this one cannot be given the required permits if there are practical alternatives that will cause less damage."

Nonetheless, the resistance by agencies to sign off on permits for the highway is unprecedented.

"I was a little surprised, but given the environmental impacts, these agencies are doing their job," Martin said.

Along with the run-of-the-mill road-building complaints that are par for the course in Appalachia — from despoiling historic farmsteads to fragmenting wildlife habitat — Corridor K in Graham County has some particularly sticky environmental challenges. It would mar views from the Appalachian Trail. It would cut through acidic rock with the potential to pollute streams. It would go through terrain that's steep even by mountain standards. And, it would require a half-mile tunnel.

Critics claim these would detract from the natural beauty Graham has to offer.

"I disagree with that, but I certainly understand the point of 'don't destroy what it is you are trying to enhance,'" Setzer said.

As for the tunnel, Setzer sees it as an environmentally sensitive solution. It goes under the Appalachian Trail, avoiding a major highway crossing for hikers. It could also be a possible tourism boon.

"There might be people who come to drive the road just to go through the tunnels," Setzer said.

Tired of waiting

Graham County leaders believe a four-lane highway is what separates them from their more prosperous neighbors — both literally and figuratively.

The county's unemployment rate of 18 percent is the highest in the state. It also has the highest rate of child hunger.

"That is my reasoning for trying to advance corridor K as soon as possible because of how destitute the area is," said Roger Shuler, a retired contractor in Robbinsville.

Graham is not only poor but small, with young people leaving to find work.

"The thing you always gave kids for a graduation gift was a suitcase," said Edwards, the chairman of the county board.

A four-lane highway could change that. It would not only bring business but quicker commutes to everything from shopping to jobs to Western Carolina University.

"When people think economic development, they think factories and four-lanes and tractor trailers. That is very narrow. It is also access to health care and access to education and access to tourism assets," said Ryan Sherby, planning liaison with the Southwestern Commission.

The biggie for many is access to medical care since Graham lacks a hospital.

"We have too many people being flown out of the community on an emergency helicopter at $15,000 a ride," said Edwards, a retired teacher and school administrator.

But with $800 million on the table, Graham County could build a hospital instead of a road. It could solve education woes by building a satellite university campus, Martin said.

"You could bring in an entire team of economists to come up with an economic development plan in Graham County for that much money," Martin said.

Some question whether the county has embraced the economic options at its fingertips now.

"What I would say to Graham County leaders is focus on what you have," said Julie Mayfield, director of WNC Alliance, a regional environmental group. She rattled off the diverse and unique outdoor tourism appeal of Graham County: the scenic Cherohala Skyway, Joyce Kilmer's giant trees, Lake Santeetlah, class V paddling on the Cheoah, Tsali mountain biking and the world-class motorcycle ride known as the Tail of the Dragon.

"We go to vacation in Graham County," said Mayfield, who lives in Asheville. "I am no PR expert, but I am confident I could design a tourism brochure for Graham County that would draw more outdoor recreation tourism."

While Graham County laments its plight as the only county in the state without a four-lane road, it's actually an asset, Mayfield said.

"I would celebrate that. I think there are a lot of people who would go to Graham County because it is a hidden gem," Mayfield said. "There is an audience there to be appealed to."

But, Edwards said the four-lane highway would actually help tourism if Graham County wasn't so hard to get to.

"The easier it is to get here the more likely they will come," Edwards said.

Graham County may be the last county without a four-lane — but it is also the last county that is completely dry. Even the grocery stores in Robbinsville don't sell beer or wine.

When asked whether the lack of alcohol could be a deterrent to young people staying in Graham County or hurting tourism, Edwards didn't deny it.

"It has been said by some, but that is a very volatile issue," Edwards said, adding there are no plans to change it.

Age-old debate

"They want to come and tell us, 'No you cannot build a road because it devastates our landscape,'" said Roger Shuler a Graham County resident.

These outsiders have packed the numerous public hearings on Corridor K over the years, painting a tainted picture of public opinion, said Edwards, chairman of the Graham County commissioners.

"The thing that gets me is there is always an outside influence that wants a say-so on what is going to impact us here locally," said Edwards. "We've been impacted from attorneys of every flavor of organization over the years.

I respect that, but the 9,000 people in my county have to be accounted for in the environmental argument. The people here have a right to life, liberty and the pursuit of happiness."

That doesn't change the reality of environmental court challenges should the road proceed. In fact, the threat of lawsuits was among the concerns cited by resource agencies that are holding up the project as currently designed.

The road known as Corridor K has long been mired in a philosophical debate that on the surface pits outside environmentalists against more conservative locals.

But that would be over-simplifying things. Retirees lean both ways — some eager for quicker access to a hospital and others relishing the rural lifestyle.

Some multi-generation families in Graham are eager for progress the highway will surely bring, but others fear an erosion of their heritage and way of life.

Even the outdoor industry is torn. Getting tractor-trailers out of the paddling-crazed Nantahala Gorge would no doubt please some rafting companies and kayakers, who would no longer have to worry about the barreling freight traffic. But outdoor enthusiasts like the rugged nature of Graham County's prized recreation areas.

These debates are merely academic, however, as long as the state and federal agencies continue to dig in. Many local advocates for the project don't even realize it's in jeopardy, however.

"We think our chances are very good," said Antoinette Burchfield, with the local Corridor K Coalition. "We think it is going to be sooner than everybody realizes."

Birchfield knew nothing of the impasse with federal agencies about permits, asking whether that was the same as the lawsuits being threatened by outside environmental groups.

Birchfield has been going door-to-door to county commissioner and town board meetings in the seven western counties seeking an official endorsement for Corridor K. She has racked up an impressive number of formal resolutions from local government bodies, suggesting a majority of leaders in the region support their brethren in Graham County in its quest for a highway.

Two roads better than one

Ironically, the DOT's strategy to advance the highway has backfired. Instead of building the entire 18-mile missing link at one time, the DOT broke it into two roughly equal segments — one from Stecoah to Robbinsville and one leading on toward Andrews.

Only the first half is up for debate now. The other half — from Robbinsville to Andrews — would be years away.

"We didn't have the finances to go in and build the whole thing at one time because it is an expensive project," Setzer said.

Tackling one segment at a time was also seen as an easier route to dealing with environmental concerns. The drawn-out timeframe for the project meant the DOT had to keep revisiting its environmental assessments — first in the 1980s, again in the 1990s, and again a decade later. Redoing the environmental studies each time was a massive undertaking.

"We decided let's not do a plan that is going to have to be refreshed again. Let's separate it and do it in manageable chunks," Setzer said.

Agencies questioning the highway argue that the costs and environmental impacts should be analyzed in their entirety, not piecemeal.

Regardless, the DOT is now hamstrung by its piecemeal approach. If the DOT wants environmental impacts to be considered in standalone segments, the benefits must also be justified in standalone segments.

But, justifying the economic benefits of half a highway — the single 9-mile segment leading in to Robbinsville — hasn't worked.

"I think it is gong to be very difficult to quantify the economic impacts of building a four-lane road that will dead end in Robbinsville," Martin said.

Setzer agreed on that point. The economic benefits of the highway won't be fully realized unless both segments are built.

And, that begs the question: does building the first segment make the second segment a foregone conclusion?

The second segment is predicted to be even more expensive and environmentally challenging, but state and federal agencies fear they will be pigeonholed into approving it once the first one is already built, preventing a true analysis.

Setzer said tackling the entire missing link as a single project as some of the agencies want to do would essentially mean starting over — and would likely derail the process.

"It builds in certain delays and the longer you delay it the more apt funding will be seized for what somebody else thinks is more important," Setzer said. "We should allow the fragmentation to eventually get to the ultimate goal."

Money on the table

While opponents point to the sizeable price tag, money is not a hang up. The DOT has almost enough to build the first nines miles sitting in the bank, waiting on the green light. It has been saved up thanks to a special pot of federal highway dollars earmarked for the Appalachian region.

The money is burning a hole in the DOT's pocket and driving the project, according to critics.

"They either spend or they don't," Gerken said. "So they are trying to come up with a legitimate purpose for building this road."

The view is shared by at least some of the state and federal agencies.

"There are disagreements among the agencies about whether the project is really needed or is driven by the availability of Appalachian highway funding," states a report last year summarizing concerns of the agencies.

One of the agencies interviewed for the report said the special pot of money "creates a want without a substantiated need."

Preconceived notions

The DOT hit a stumbling block two years ago that in hindsight was a harbinger of more serious roadblocks to come. The Army Corps of Engineers, one of the many agencies that can make or break the project by denying permits, called for a partial do-over of the DOT's environmental analysis.

Several agencies were questioning why the DOT couldn't upgrade the existing two-lane highway through Graham County instead of building an entirely new one. The Army Corp sent DOT back to the drawing board to determine whether upgrades to the existing road would suffice.

They wouldn't, DOT determined.

The DOT countered that simply dressing up the winding two-lane road through Graham County with an extra climbing lane here and there, wider shoulders and gentler curves isn't really fixing the problem.

Cars just won't take a route around the Gorge if it is only marginally better.

"They say it has to be big enough and fast enough to lure traffic away from the Gorge," Gerken said.

Not surprisingly, Gerken doesn't think the DOT did an "adequate analysis" of upgrading existing roads.

"I would characterize it as a half-hearted attempt," Gerken said. "Because this is a project in search of a defensible purpose, DOT shouldn't have eliminated a lighter footprint from consideration. Targeted improvements to the existing roads could be built now without controversy and at a fraction of the cost."

Agencies holding up highway permits have been frustrated that DOT is unwilling to consider anything but a new four-lane highway. Critics say DOT has blinders on to anything except a four-lane highway and are refusing to think creatively about an appropriate road through the mountains.

"There seems to be all kind of options other than building your 'anywhere-in-America' four-lane," Martin agreed.

The existing road could be upgraded not just with climbing lanes, but all sorts of bells and whistles aimed at luring eco-tourists. Picnic areas, overlooks, wildlife viewing pull-offs, hiking trails, fishing access, cultural heritage sign boards could all be built in.

The premise is hard to argue with, no matter how many lanes a new road would have.

"If we do need a new road, let's design it so we can capitalize on the assets we do have," said Ryan Sherby, regional planner for the Southwestern Commissioner. "It would go through some fabulous public lands. Let's provide access to them."

Setzer said the goal is to get traffic now using the Nantahala Gorge to use the new highway instead, and if it isn't any faster, they won't take it. That means the road through the Gorge itself would have to be upgraded.

Even the reluctant state and federal agencies agree that the Nantahala Gorge is congested and unsafe, clogged for six months of the year with rafting buses and an onslaught of cars sporting kayaks on roof racks.

Gibson, director of the Southwestern Commission regional planning agency, has had a front row seat to the Corridor K debate over the decades. Brand new on the job in 1975, he traveled to Raleigh to see design options being considered by the DOT for a four-lane highway through Graham County.

One option was a double-decker highway through the Nantahala Gorge, achieving four lanes by stacking them on top of each other. Another was to divide the highway, with two lanes in one direction on one side of the river and two lanes in the other direction on the other side.

Those obviously fell by the wayside in favor of a new highway through Robbinsville. Yet three decades later, it is still floundering.

"The folks in Graham County are still waiting," Gibson said. "A lot of the people who hoped to see it in their lifetimes are gone now. Others who hoped to see it in their lifetimes are afraid they will be gone."

Will dollars flow down new highway?

Will a four-lane highway bring economic development to Graham County?

While local leaders and the N.C. DOT have a hunch that it will, state and federal environmental agencies aren't convinced and so far have refused to sign off on permits for the environmental damage the highway would cause.

But, there may be a way out of the impasse. A regional economic development plan for the seven western counties will be launched in coming months. It may prove the highway is needed, but likewise, it may not.

"Everything is on the table," said Ryan Sherby, a regional planner with the Southwestern Commission agency based in Sylva. "People need to quit thinking about fighting for a four-lane road. People need to think about what is our economic development vision for our region."

The study may indeed quantify the economic benefits of a four-lane road, and if so, highway supporters will have the justification that state and federal agencies say is lacking.

But, it may also show that there are other economic ideas. The Southwestern Commission will act as project manager, but an outside consultant will be brought in to lead the study. It will take 12 to 24 months and involve dozens of players.

The study will be funded with a piece of Appalachian highway money, but that doesn't mean road-building interests will have an inside track to influence the study's outcome, according to Joel Setzer, head of the N.C. DOT for a 10-county mountain area.

"We aren't trying to stack the cards," Setzer said, pledging that his agency is willing to let the "chips fall where they may."

A way through the impasse

The impasse over a $800 million four-lane highway in Graham County is a rarity in road building.

It is not uncommon for state and federal agencies to express concerns about a project's environmental impacts but rarely do they rise to the level of refusing to sign off on permits.

In hopes of breaking the logjam, a firm that specializes as mediators in environmental disputes was brought in to assess the prospects of a resolution and recommend a course forward.

The U.S. Institute for Environmental Conflict Resolution interviewed 58 stakeholders in early 2011 in hopes of ferreting out the hot button issues that must be solved.

"There are disagreements among the agencies about whether the project is really needed," the mediators concluded in their assessment. "Several agencies expressed the view that the environmental impacts are severe and that the expectations of economic benefits are not sufficiently supported to justify the environmental impacts."

Those interviewed include the Environmental Protection Agency, Army Corps of Engineers, N.C. Division of Water Quality, U.S. Fish and Wildlife, N.C. Wildlife Resources Commission, Appalachian Trail Conservancy, Eastern Band of Cherokee Indians, as well as local leaders, DOT and federal highways.

Here's a sample of concerns expressed by some of the agencies as listed in the mediators' report. The firm points out that not all agencies share the same level of concerns.

• There are many questions about whether the expectations of economic benefits from the road are realistic.

• There are disagreements among the agencies about whether the project is really needed or is driven by the availability of Appalachian highway funding.

• There are different perspectives among the agencies as to whether the recognized environmental impacts are worth the environmental costs, especially given uncertainty about the expectations of economic benefit from the road.

• There is disagreement about the feasibility of and plans for mitigating the environmental impacts, especially related to acidic rock.

• The feasibility, cost and desirability of the tunnel is a concern.

• The project is driven by a 'Build it and they will come' approach.

• Many are not clear about why the option of improving existing routes is not a viable alternative.

• The fact that the "Purpose and Need" was developed in the 1980s raises questions for some about whether it is still applicable and relevant.

Two of the main arguments in favor of Corridor K construction are safety and economic growth. Road advocates maintain that having an easily traveled corridor into the area will allow larger companies — and their requisite supplies and equipment — to set up shop there. It would also give faster, safer access to health care. Residents must now traverse steep and winding two-lane roads to get to nearby hospitals and doctors’ offices. Ambulances can take up to two hours getting to Asheville’s Mission hospital, since their rescue helicopter can only reach the area in clear weather.

Melba Millsaps

Job: Nurse

Lives in: Robbinsville – her home is in the road’s path

Position: Supports

“I really love where I live, and as much as I love living there, even more than that I want this road built. I know how important it is to receive quick medical care when you need it. We need to have quicker access to health care, which could mean the difference between life and death, so I’m for the road. Is it going to impact me? Yes, it is. But you know what? I’m thinking about my grandchildren and how to make it easier on them in the future.”

The Brain Drain

Many in Graham County are concerned about the brain drain that lack of economic opportunity creates there. Unemployment is high — just above 16 percent in March — and there is no community college within the county. Some road proponents are hopeful that a 4-lane will allow their top young minds to commute to college instead of leaving the county, and that it will entice industry that can provide them jobs after graduation.

David Matheson,

Job: Principal at Robbinsville High School

Lives in: Robbinsville

Position: Supports

“Our No. 1 export in Graham County is our young people. The young people that we are exporting are the top 10 or 15 percent of our graduating class, every year. Our school is performing miracles with our kids, but they don’t have the ability to come back to Graham County and make a decent living. This road is the first step and this road needs to be built, even if you have to bulldoze my house to start it.”

Environmental Destruction

Deleterious effects on the environment and natural mountainous character are the reasons some opponents list when making their case against the road. The new highway would cut a wide swath through Stecoah, and opponents highlight the changes it would bring to the region’s rugged mountain character. They also point to the road’s potential for environmental damage from leaching from acidic rocks to threats to native species.

Instead, they advocate for improving the existing two-lane road, making it less narrow and curvy, rather than building a brand-new highway.

Ken Brown,

Job: Chairman of the Tuckasegee Community Alliance, a chapter of the WNC Alliance.

Lives in: Sylva

Position: Against

“The WNC Alliance has long been opposed to the Corridor K proposal because of the effects on rare and endangered species and the Stecoah valley. We believe that growth should be appropriate to the region and should be managed to maintain the world-class natural resources we have here. We want [the North Carolina Department of Transportation] to undertake a more in-depth analysis of upgrading the current right-of-ways.”

Whole Road or No Road

One opposing camp believes the proposed segment of highway would be useless unless the final link of Corridor K — section A, stretching from Robbinsville to Andrews — also gets built. They say a four-lane highway into Robbinsville petering out to a two-lane wouldn’t bring a significant increase in traffic, just a significant expense.

Josh Carpenter

Job: Cherokee County planner

Lives in: Robbinsville

Position: Against

“I think the most important section of this road is the A section. If that’s not completed, I don’t think we’ll have any positive impact from the overall impact of the road. The road will make change and I think that Robbinsville and Graham County need to prepare for that.”

Way too costly

Other challengers to Corridor K cite its high cost — $383 million. $197 million of that would build the tunnel. Corridor K is a part of the Appalachian Development Highway System, and the federally allocated ADHS fund would foot 80 percent of the bill, with a 20 percent match from the state. Detractors say that the $3.46 million per mile is far too much, and that economic benefits won’t offset the costs.

Jim Grode

Job: Executive director of WaySouth, a group that promotes sustainable transport in Appalachia

Lives in: Asheville, N.C.

Position: Against

“If we make the generous assumption that North Carolina keeps getting about the same annual amount of federal money for this highway, the earliest it could have enough money to finish this project is in 2028. The bumper stickers that say ‘the money is there, build the road now’ would be more accurate if they said ‘a fifth of the money is there, build the road in 20 years.’ It will take over 75 years for the benefits to equal the cost. That’s a payback period no investor would ever touch, and this road may literally never pay for itself.”

In Graham County, a public hearing last week on Corridor K drew a crowd of 200 people, speaking for and against a new four-lane highway that would end rural isolation but destroy virgin countryside in the process.

The 9.9-mile highway would cost $383 million to complete. As one of the last missing links of Corridor K — known as section B-C by highway officials — it would go from Stecoah to Robbinsville.

The highway through Graham County has been in the planning stages for years but suffered a temporary setback in 2009. The North Carolina Department of Transportation was sent back to the drawing board by the Army Corps, who asked for a better analysis of the proposal and its impact.

At the time, many called for the current two-lane offerings, N.C. 143 and N.C. 28, to be widened and upgraded in lieu of a brand-new, four-lane highway.

But DOT officials have now said that their studies showed that to be impossible without damaging the renowned Appalachian Trail. The existing two-lane highway already crosses the trail, but should that road be widened, it would have a negative impact on the federally protected path.

Last week, the transportation department brought forward a new and improved version. The new plan offers two proposed routes that follow roughly the same path through the Stecoah Valley, with one swinging slightly further north. The DOT is are backing a combination of the two routes as their preferred option.

It includes a lengthy tunnel, just over half a mile long, intended to preserve the integrity of the Appalachian Trail by burrowing under it rather than bisecting it. A 1,063-foot bridge spanning Stecoah Creek is supposed to protect the waterway from degradation.

Some in Graham County are heralding the road as a boon to the region. Others see it as a blight on the landscape and the budget.

What is Corridor K?

The idea for a four-lane highway through the counties west of Asheville — known as Corridor K — had been on the books for decades. It is mostly completed except for a missing link of 17 miles through Graham County, the most remote and rugged stretch.

Corridor K is part of the Appalachian Regional Highway System, extending to Cleveland, Tenn., and devised in the ‘60s to engender economic development in isolated regions of Appalachia.

A proposed four-lane highway through a mountainous region of Graham County has suffered a setback.

The N.C. Department of Transportation was nearing the final planning stages and hoped to start construction in a few years on what is commonly known as Corridor K. But the project has been sent back to the drawing board to consider whether a two-lane option could achieve the same purpose as a new four-lane highway.

The roadblock has come from the Army Corp of Engineers, which has to sign off on various environmental permits for the highway. The Corp ruled that the DOT did not properly consider all the alternatives, however. The Corps wrote in a letter to the DOT that “upgrading and improving existing two-lane roadways should be given full consideration as a practical alternative.”

The DOT was supposed to weigh the pros and cons of various options in an environmental analysis — as required by federal law for projects of this magnitude — but a two-lane highway relying partially on existing roads was not included in the 2008 study.

“A massive, four-lane highway through the mountains of this region is overkill, both in terms of the price tag and environmental harm. It’s great news the agencies are considering more reasonable alternatives,” said DJ Gerken with the Southern Environmental Law Center in Asheville.

The idea for a four-lane highway through the counties west of Asheville had been on the books for decades and is mostly completed except for a missing link of 17 miles through Graham County — the most remote and rugged stretch.

At public hearing on the road last fall, critics of the new highway far outnumbered supporters. They cited the environmental impacts of a new four-lane highway and loss of historical rural character of Stecoah Valley.

But to supporters, the highway would bring sorely lacking economic development and benefit commerce in a county that currently has no four lanes roads leading in or out.

In North Carolina, the DOT’s own studies show that improvements to existing two-lane highways will easily handle the projected traffic for decades to come.

“They can’t ignore an alternative that costs half as much and avoids paving through an environmental treasure. Federal law is clear on this,” Gerken said.

Only 10 miles of the 17-mile missing link are currently in the planning stages — a section leading north out of Robbinsville over Stecoah Gap. The 10-mile section would cost $378 million and cut a more than half-mile long tunnel under the Snowbird Mountains, requiring excavation of 3 million cubic yards of rock.

“A new four-lane highway through sensitive mountain habitat would have unacceptably destructive impacts to wildlife habitat and water quality,” said Hugh Irwin with the Southern Appalachian Forest Coalition in Asheville. “Upgrading existing highways has always made the most sense.”

Chris North with the North Carolina Wildlife Federation cited the impacts to public lands, including trails, trout streams, hunting areas and campgrounds.

Environmental organizations are lauding the Army Corp for not rubber stamping the project but instead requiring due diligence by the DOT.

“We are grateful that the Corps has heard our voice and the voices of others in the region,” said Lucy Bartlett, chairman of WaysSouth, an organization solely focused on reducing the footprint of new highway construction in the mountains.

The DOT could still theoretically get approval for the four-lane highway after going back and analyzing the two-lane option if they can prove the two-lane would not do the job.

An overwhelming majority of citizens who showed up at a public hearing in Robbinsville spoke out against the Corridor K road project last Thursday (Oct. 29).

The proposed four-lane highway would supplant the winding, two-lane roads that are currently the only means of access to Graham County. In the process, it would bore a half-mile long tunnel — the longest in the state — through a mountain. It would also tower over the rural Stecoah Valley area.

Corridor K, a 127-mile route through the mountains of Tennessee and North Carolina, has been in the works for more than three decades. The DOT wants to start construction by 2014 on a 10-mile section of the 17-mile missing link in Graham County.

The road’s three goals are to bring economic development, end a geographic isolation N.C. DOT sees as dangerous, and improve steep and curvy roads that currently feature inadequate shoulders.

The highway would take the thousands of tractor-trailers out of the Nantahala Gorge, which is currently the main artery to reach Murphy but is clogged with buses loaded with rafters and kayakers.

David Monteith, a Swain County commissioner, said the new highway would increase tourism in Swain County, bringing more people in to raft the Nantahala and ride the train.

“It would bring in more people to Western North Carolina, period,” said Monteith.

But only two of the 22 speakers at the N.C. Department of Transportation hearing piped up in favor of the road. The rest enumerated every conceivable reason for why the road has no place in Graham County.

Bob Grove said the proposed roadway would not help Graham County’s economy. It would more likely provide easy access to a big-box chain stores like Wal-Mart than to downtown stores. For Grove, the highway provides an open invitation to local residents to head out of town to do their shopping.

Grove and many others suggested that it would be far less expensive and less destructive to improve the existing roads, rather than build a highway that would destroy the town’s main draw for tourists: scenic, winding two-lane roads.

Tom Hoffman of Virginia said he might stop coming to Graham County if the highway is built and that he would not return to “ooh and aah at a freeway interchange.”

Many voiced concerns about Robbinsville losing its rural character and transforming into yet another American “Clonesville,” with strip malls, billboards and fast-food chains lining the streets.

Others who objected said second home owners, who would surely come with the highway, would jack up tax values and drive out today’s local residents.

“It’s a euphemistic thing to be calling it economic development,” said Brian Rau of Stecoah. “To me, it’s just plain development.”

The issue hit close to home for Guy Roberts, who would lose the property that’s been in his family for five generations and more than a hundred years.

“We would like to preserve what is there for future generations,” said Roberts’ son-in-law Jeff Phillips. “I want to be able to fish with my grandchildren and have horses and cows they can play with. I want to be there for the rest of my life.”

A telling example of Graham County’s position came at two points in the night. Nearly everybody raised their hands when asked if they were against the road. When Melbe Millsaps asked who actually worked in Graham County, only a handful went up.

Millsaps said even though Corridor K would cut through her property, it would also provide more jobs and better access to education and healthcare for Graham County. Millsaps said she knows how dangerous the roads there can be after being forced to commute two hours each way to get to her nursing school.

“I think it’s time for Graham County to move into the 21st century and build the road,” Millsaps said.

Denny Mobbs, who lives in Ocoee, Tenn., agreed and said it’s time to bring some development into Graham County.

“We don’t want a pristine impoverishment,” said Mobbs.

Others worried about the road’s environmental impact, including air, noise and water pollution. The tunnel, which would be a major expense of the project, avoids the Appalachian Trail by going under it.

Melanie Mayes, a Knoxville geologist, said the N.C. DOT had not released any information about the possibility of landslides and acid leaching out of rocks.

Mayes pointed out that there was not even a single geologic map on the environmental impact study that was released. When Lewis said the N.C. DOT would give her all that information, Mayes retorted that it should have been released long ago.

Graham County Commissioner Steve Odom reminded citizens that even though Corridor K is controversial, they should realize that the county’s roads do need to be fixed in some way.

“It’s dangerous, I tell you,” said Odom. “You folks have a lot to debate, but we have some immediate needs, too.”

Weigh in on Corridor K

Let the N.C. DOT know what you think about the Corridor K Project by Dec. 4.

When President John F. Kennedy formed a federal-state committee in 1963 known as the President’s Appalachian Regional Commission, one out of every three people living in Appalachia was living below the poverty line. Millions of Appalachians were fleeing for work in other regions, and per capita income was 23 percent lower than the U.S. average.

One of the solutions proposed by the ARC was to build over 3,000 miles of roads into Appalachia, roads that would bring jobs, wealth and modernization. And the roads did come. The alphabet soup of highway projects that came out of the ARC are visible everywhere in Appalachia today —– Corridor B, for example, or more commonly known as Interstate 26, was completed in 2003 at a cost of $250 million —– for the last nine miles of highway blasted through mountains from Asheville to Tennessee.

A small segment of Corridor K, which the ARC and NC DOT are working to complete, will come at a similar cost. Ten miles of Corridor K will come with a price tag of $350 million of federal and state tax dollars to blast a road from the Stecoah community through the Nantahala National Forest to Robbinsville. The ostensible reason for building the road is that it will solve Graham County’s problems of unemployment, poverty and isolation. These are serious problems, particularly since Graham’s unemployment and poverty rates are higher than state averages. But will building a four-lane highway solve these problems? The NC DOT claims it will.

Specifically, the DOT claims that a new four-lane highway will attract businesses, make commuting to work out of the county faster and easier, lure tourists who enjoy “reduced travel time and increased accessibility,” and improve access to medical facilities. What the DOT does not acknowledge is that highway construction jobs bring only a temporary bump in local spending and that very few of those dollars would circulate locally. Large crews and specialized equipment skills required by such a large project will likely mean importing many contract workers. Small rural economies have small economic multipliers, so few of those dollars will remain in the local economy. Contract workers will send paychecks to their families back home, and likely travel there themselves during their time off. Since the increased spending is known to be temporary, new retail businesses are unlikely to invest in new or expanded local stores.

Even after the highway is finished, an interstate through an isolated rural area carries people out as well as in, and would likely encourage Graham County residents to do more of their shopping outside the local area.

Expanding highway capacity in hopes of attracting manufacturers takes a backward-looking view of both the U.S. economy as a whole and this region in particular. Manufacturing jobs have declined throughout North Carolina’s western mountain counties, from 37 percent of the workforce in 1970 to 10 percent in 2007. It is not likely that a new four-lane highway will bring those jobs back, especially as fuel prices continue to climb over the coming decades.

Solid long-term economic development is based on the inherent strengths of an area. For Graham County, that includes a strong rural work ethic and unsurpassed wild natural surroundings. An interstate will not contribute to the former, and it will seriously damage the latter.

Jack Schultz, author of Boom Town USA: The 7 Keys to Big Success in Small Towns, documents the increasing popularity of small rural towns as the fastest growing economies in the nation. Increasingly, entrepreneurs are moving to these places because of their natural beauty and small-town atmosphere, and they bring their businesses and their retirement incomes with them. Schultz names Highlands as one of the “Golden Eagles” — the top 100 “Agurbs” in the nation. Highlands’ location is very similar to Robinsville’s: it’s in a valley surrounded by Western North Carolina’s beautiful mountains and is at a similar distance from interstate access. Clearly, an interstate is not necessary for economic success in this part of the state

At the other end of the state, Tyrrell County is featured in another recent publication, Balancing Nature and Commerce in Gateway Communities. The least populated of all North Carolina counties (Graham is 98th), Tyrrell County has chosen to turn its remoteness into a marketing advantage. The county bills itself as “unspoiled, uncrowded, uncomplicated,” with attractions ranging from red wolves to the Scuppernong River nature trail. Per-capita personal income has risen by 11 percent (after adjusting for inflation) since the Balancing Nature and Commerce book was written, and Tyrell County’s unemployment rate now ranks 42nd in the state compared to Graham County’s fourth (November. 2007 data).

According to the Graham County Chamber of Commerce web site, “Graham County, filled with Smoky Mountain adventures, is becoming better known every year. With a natural beauty still unspoiled by crowds, it is truly a rare find in today’s world.”

If Graham intends to keep it this way, the county had best ask the ARC to provide Graham with a cash alternative to this destructive highway, and invest instead in the long-term preservation of the goose that will hopefully continue to lay golden eggs for years to come. Strip malls, convenience stores, and chain restaurants that come with the type of highway DOT is proposing will only strangle the life out of it.

(Brent Martin works for The Wilderness Society in Franklin, NC. He can be reached at This email address is being protected from spambots. You need JavaScript enabled to view it..)

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